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Root Causes of Low Employee Morale Study

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Root Causes of Low Employee Morale Study Federal Election Commission Office of Inspector General Root Causes of Low Employee Morale Study July 2016 Assignment No. OIG-15-06 Root Cause(s) of Low Employee Morale July 2016 EXECUTIVE SUMMARY Job Performance Systems (JPS) was hired by the Office of Inspector General (OIG) to report on the root causes of the Federal Election Commission’s (FEC) low morale. This study was motivated by past Federal Employee Viewpoint Surveys (FEVS) that place the FEC low on the Partnership for Public Service’s ranking of The Best Places to Work in the Federal Government. In addition employees have complained to the OIG about low employee morale. METHODOLOGY Following a review of the FEVS results and internal agency documents, JPS interviewed 78 individuals, facilitated 4 focus groups, and analyzed a customized survey completed by 185 personnel. The key statistic we used in evaluating survey items was the percent of respondents (excluding those choosing Not Applicable) that selected either the Agree or Strongly Agree option. From all this data, JPS identified the major factors that were contributing to low morale. The statements made in this report are therefore based on an aggregation of data from what FEC staff communicated to JPS through interviews, focus groups, and a survey, as well as an analysis of FEVS data. FINDINGS The major causes of low morale can be grouped in five categories as shown in Figure 1. Figure 1 Causes of Low Morale at the FEC Job Performance Systems i Root Cause(s) of Low Employee Morale July 2016 Commissioners’ Statements and Actions Employees fault the Commissioners for much of the low morale at the Agency. Many stated the negative tone set by the Commissioners impacts how employees feel about their jobs. So too do public statements Commissioners make that criticize the Agency. Many employees do not feel that the Commissioners value their work. Employees also fault the Commissioners for poor staffing decisions within the Agency. In particular, employees feel that the Commissioners’ practice of leaving so many managers in an acting role negatively impacts the organization. Ineffective Management Many employees are also critical of top management and view them with suspicion and distrust. A significant number of employees do not feel the Staff Director, the Acting General Counsel, or the Acting Chief Financial Officer (i.e., the senior leaders) are effective. The fact that the Staff Director occupies two positions, head of the Office of Staff Director (OSD) and Office of Chief Information Officer (OCIO), is another common concern of employees. The fact that one individual holds both positions may contribute to the problems we heard about the quality of the information technology (IT) employees are provided and the support they receive. A number of people believe that rewards, good assignments, and promotions unfairly go to managers’ favorites. A sign of the major gulf between employees and upper management was the fear that employees have of retribution should they voice their concerns. Poor Communication Almost universally, employees want more frequent and detailed communication from senior management. As examples, employees want to hear more quickly about changes in staffing, IT systems that are down, and the status of the possible building move. Inadequate communication may lead to the spread of rumors. Inadequate communication is also a major frustration voiced by employees subject to reorganizations. Our survey reveals a major gap exists between managers and employees on this topic. While many supervisors and managers think upper management communicates adequately, relatively few employees share this perception. Our data also indicates senior management has much work to do to gain the trust of employees that what they do tell them is truthful. We believe that on many important subjects upper management and line employees just do not have all that many honest, open, and trust-building exchanges. Lack of Accountability Another theme we heard was the failure to effectively hire, develop, and hold people accountable for performance at higher levels of management. Many employees, however, have positive things to say about their own supervisor. Job Performance Systems ii Root Cause(s) of Low Employee Morale July 2016 A significant number of employees are also frustrated that there still exist chronic poor performers who are not being dealt with appropriately by management. Employees told us that in many cases this means the more capable and conscientious workers are asked to pick up the slack. Other Factors Perceived Lack of Diversity. It is the perception of many employees that the FEC has yet to implement an effective program to promote a more diverse and inclusive culture, particularly among higher levels of management. Some offices were frequently perceived as having predominately white, male managers. Little Career Development and Limited Promotion Opportunities. Many employees face significant challenges in gaining promotions to higher level GS positions. These challenges include the limited number of openings associated with a small agency, little use of Individual Development Plans (IDPs), and limited career development discussions with supervisors. The widespread practice of filling positions in an acting rather than permanent capacity is a further frustration for some individuals seeking advancement. In the OGC, employees are frustrated that top management is hiring young attorneys from prestigious schools rather than putting more effort into developing and promoting from the current workforce. CONCLUSIONS AND RECOMMENDATIONS JPS has identified the major causes of the low morale at the FEC. The findings we reported in this study are entirely consistent across the interviews, focus groups, and survey plus years of FEVS ratings. The Commissioners and those at the most senior levels of management now need to make a commitment to improve Agency morale and invest the necessary time and resources to make a real difference. While our task in this project was to clarify the factors causing low morale, this does not paint a full picture about working at the FEC. Employees also identified several factors which boost their morale. Most employees believe strongly in the mission of the organization. Many feel quite positive about the nature of their work. A good work-life balance was cited as a major plus and a major reason that many employees stay. Many individuals told us their colleagues and their immediate supervisor were positive factors about working at the FEC. Clearly, some of the problems we identified in this study are easier to address than others. In any plan the Agency develops there will be relatively quick wins the Agency should seek, along with others that may take many months or years to achieve. Longer term, the FEVS data and data collected in this study should serve as baseline information to determine if the changes being pursued are successful in improving Agency morale. Reversing the downward trend in FEVS ratings would be a welcome sign of success. The re-administration of items in the present study would be another way to quantify improvement. Job Performance Systems iii Root Cause(s) of Low Employee Morale July 2016 Commissioners and Management There are a number of actions Commissioners should take that would support improved morale. All start with the Commissioner’s appreciation of the impact their statements and behaviors have on the workforce. At a more fundamental level, we encourage the Commission to rethink its approach to managing the workforce. Other strategies and models are possible that would require less of a need for input from across the Commission and result in greater delegation to Agency senior leaders on decisions that affect personnel. Such a change in course is based upon the presumption of an effective management corps that has the confidence of line employees. We recommend that the Agency take steps now to enhance the skills and knowledge of its current managers. Formal and informal training is an example along with the widespread use of executive coaching. Filling management positions with permanent hires rather than with people in an acting role should be a priority along with separately filling the Staff Director and CIO jobs. Communication We advise Agency’s senior staff to ensure more timely information covering a greater number of topics is regularly provided to all members of the organization. Until this happens information gaps will continue to be filled by rumors and speculation. This study provides a starting point for identifying topics of particular interest to employees. As good communication is a two-way street, the Commissioners and upper management need to also find ways to better learn the views and concerns of employees. Currently many employees either do not feel safe to express their views or do not believe their ideas will affect management decisions. Management Accountability We strongly encourage that management skills and potential are better defined, assessed, and used in making promotions within the management ranks. In addition, supervisors and managers not performing to expected levels need to be dealt with appropriately. Management must also be held accountable for putting additional efforts into raising the quantity and quality of output from chronically disaffected and unmotivated employees and if those efforts are not successful, taking the necessary steps to discipline and/or remove those employees who are not fulfilling their responsibilities
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